Urban Planning in Europe: International Competition, National
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URBAN PLANNING IN EUROPE Throughout Europe there has been a major trend towards increased urban competition, national deregulation and greater private sector influence. Has this trend led to a common planning response? What is the scope for more social and sustainable planning? Urban Planning in Europe is the first book to analyse comprehensively the influences on urban planning in Europe. Urban planning is undergoing a period of transformation across Europe and the book identifies the international, national and local forces causing this change. It encompasses all countries in western and eastern Europe, providing both a comprehensive guide to the planning systems of each country, as well as detailed studies of a range of cities. The book is structured in two parts. The first outlines the forces impinging on planning in Europe at the international, national and urban level. Looking at the growing influence of the EU, a typology of countries is developed based upon legal and administrative divisions which forms the basis for presenting the similarities and differences of each country’s national planning system. Having set the broader context, the second part selects three contrasting countries—Britain, France and Sweden—and, through an analysis of the theories of urban decision-making, explores planning policies and projects in a range of cities: Birmingham, London, Paris, Lille, Malmö and Stockholm. The authors show that there is variety in urban planning due to differences in legal and administrative structures, local politics and the relative power of interest groups. These opportunities for innovation in the face of contemporary planning trends contain important lessons for the development of future European planning systems. Peter Newman is a Senior Lecturer in the School of Urban Development and Planning, University of Westminster; Andy Thornley is the Director of Planning Studies at the London School of Economics. URBAN PLANNING IN EUROPE International competition, national systems and planning projects Peter Newman and Andy Thornley London and New York First published 1996 by Routledge 11 New Fetter Lane, London EC4P 4EE Simultaneously published in the USA and Canada by Routledge 29 West 35th Street, New York, NY 10001 Routledge is an imprint of the Taylor & Francis Group This edition published in the Taylor & Francis e-Library, 2002. © 1996 Peter Newman and Andy Thornley All rights reserved. No part of this book may be reprinted or reproduced or utilized in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers. British Library Cataloguing in Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloguing in Publication Data Newman, Peter. Urban planning in Europe: international competition, national. systems and planning projects/Peter Newman and Andy Thornley. p. cm. Includes bibliographical references and index. 1. City planning—Europe. I.Thornley, Andy. II. Title. HT169.E8T48 1996 307.1´216´094-dc20 95–42836 ISBN 0-203-42794-7 Master e-book ISBN ISBN 0-203-73618-4 (Adobe eReader Format) ISBN 0-415-11178-1 (hbk) ISBN 0-415-11179-X (pbk) CONTENTS List of figures viii Acknowledgements ix List of abbreviations xi Part I International, national and urban influences 1 INTRODUCTION 3 2 THE INTERNATIONAL CONTEXT 9 Globalisation 9 Global cities 12 A European urban hierarchy 14 European urban and regional policy 17 Europe, nation-states and cities 21 Creating a market in eastern Europe 23 Conclusions 26 3 THE NATIONAL FRAMEWORK: PLANNING SYSTEMS 27 Introduction 27 The legal and administrative systems of Europe 28 The ‘families’ of Europe 28 Trends in national governmental approaches 38 National planning systems 42 Planning systems in the British family 42 Planning systems in the Napoleonic family 45 Planning systems in the Germanic family 60 Planning systems in the Scandinavian family 63 Planning systems in eastern Europe 69 Conclusions 71 4 URBAN GOVERNANCE AND PLANNING 76 Introduction 76 Partnership, entrepreneurial and ‘successful’ cities 78 Approaches to urban governance 80 Urban governance and planning 85 v CONTENTS Frankfurt: governing the world city 85 Milan: political influence 87 Barcelona: building on consensus 91 Prague: reinventing urban governance 95 Berlin: world city versus unique character 98 Conclusions 104 Part II National planning approaches and development projects: Britain, France and Sweden INTRODUCTION 109 5 GREAT BRITAIN: THE LEGACY OF THATCHERISM 111 Introduction 111 The Thatcherite project 112 Local government 112 Reorienting the planning system 114 Thatcherite urban policy 115 Boosterism in the cities 116 The planning system and urban policy in the 1990s 119 The greening of Thatcherism? 119 A new plan-led system? 120 New experiments in urban regeneration 122 Conclusions 125 6 ENGLISH CASE STUDIES 128 Birmingham: planning for a European city 128 The city centre 128 Birmingham Heartlands 131 City Pride 133 The Birmingham approach 134 London: planning projects, centralisation and partnership 135 The story of Canary Wharf 137 King’s Cross railway lands 139 Greenwich Waterfront 142 The fragmentation of London planning 145 Public and private strategic planning 147 Subregional alliances 150 Conclusions 151 7 FRANCE: REORGANISING THE STATE 154 Decentralisation of planning 155 Planning in the regions 156 Urban planning in the communes 161 The ‘communal public sector’ 162 Styles of urban planning 165 vi CONTENTS Urban policy 167 Problems with post-decentralisation planning 169 The re-emergence of national planning 171 Issues in French urban planning 174 8 FRENCH CASE STUDIES 176 Introduction 176 Seine Rive Gauche: city regime and international competition 176 La Plaine Saint-Denis: intergovernmental rivalry 183 The Euralille project: institutional responses to European competition 189 Approaches to urban development and planning 194 9 SWEDEN: FROM ‘MODEL’ TO MARKET 200 Economic crisis 200 The consensus culture 201 The ideological shift to the right 203 Decentralisation of power? 204 The Swedish planning model 208 The 1987 Building and Planning Act 210 The 1980s boom and ‘negotiation planning’ 212 Enhancing the market ideology 216 10 SWEDISH CASE STUDIES 221 Introduction 221 Negotiation planning of the 1980s: the story of the Globe 221 The Dennis package: restructuring urban policy for the 1990s 225 City competition and the motorway revival 225 Private interests and Projekt Österleden 227 The move to the national stage 228 The contents of the Dennis package 230 Fast-track implementation 231 A restructuring of power? 233 The Öresund Bridge: developing a new European image 236 The Örestad project 238 Malmö’s official plans 239 Euroc City 240 Issues raised 242 Conclusions 243 11 CONCLUSIONS 245 Fragmentation of government responsibility 246 Urban planning and economic growth 247 Social and environmental objectives 249 Legitimacy and accountability 253 References 255 Index 277 vii FIGURES 3.1 The legal and administrative ‘families’ of Europe 29 6.1 Birmingham 129 6.2 London 136 8.1 Paris 177 8.2 Lille 189 10.1 Stockholm 226 10.2 Malmö 237 viii ACKNOWLEDGEMENTS In writing a book of this scope we are clearly indebted to many people for their ideas and comments. Our approach and detailed research has matured over a number of years during which time we have benefited from innumerable discussions and debates with colleagues throughout Europe. An odd remark here or a small suggestion there has often led to fruitful avenues of exploration. We cannot possibly mention all the people who have helped in such ways but we would like to thank a number of people who have provided particular support. Lyn Davies of the University of Reading was a continual source of useful information on planning issues in the European Union. He also read an early draft of the book and made extremely valuable comments. Beverley Taylor read several chapters and helped us improve our style and clarify our presentation. A number of people provided information for Chapters 3 and 4, where we review planning in different countries and cities, or checked over our work. In particular we would like to thank Harry Coccossis, Kostas Lelenis, Vess Troeva, Andrzej Kurzawski, Piotr Wedrychowicz, Enrico Beltramini, Guido Borelli, Gabrielle Pasque, Tim Marshall and Rafel Llusa. For our studies of the national planning systems and projects in France and Sweden we made many visits to each country, interviewing academics and planners. We are particularly grateful for the time and trouble people took to provide us with information and interpretations about local procedures and practices. Grants from the University of Westminster’s European Awareness Fund supported a number of short visits to France and made it possible for Peter Newman to make an extended stay as a visiting lecturer in 1994. Peter also benefited from a brief period of study leave from the University of Westminster which helped to speed up the production of the manuscript. Alan Jago from the University of Westminster was a constant source of encouragement and Miffa Salter assisted in the early research for the French case studies. The chapters on France benefited from the help of a large number of people who agreed to be interviewed or commented on early drafts. Jean- Claude Boyer was a continual source of insights into French urban planning, and Gilles Verpraet,